MNP Report /2006

Transcription

1 MNP Report /2006 Tool use in integrated assessments Integration and synthesis report for the SustainabilityA-Test project W. de Ridder (editor) Contact: W. de Ridder Air Quality and European Sustainability (LED) This investigation has been performed by order of the European Commission Directorate General for Research, within the framework of 6th Framework Research Program, priority (global change and ecosystems). The research has been co-funded by the European Commission. The report s content does not represent the official position of the European Commission and is entirely under the responsibility of the authors. (MNP), P.O. Box 303, 3720 AH Bilthoven, the Netherlands; Tel: ; Fax: ;

2 page 2 of 119 Project no SustainabilityA-Test Advanced Techniques for Evaluation of Sustainability Assessment Tools Instrument: STREP Thematic priority: [ ] Global change and Ecosystems Deliverable 20: Integration and synthesis report Due date of deliverable: June 2006 Actual date of submission: 10 August 2006 (final draft delivered in June 2006) Start of project: 1 March 2004 Lead contractor for this deliverable: (MNP) PO Box 303 NL-3720 BA Bilthoven The Netherlands Correspondance: Wouter de Ridder Duration: 30 months Revision : version 5.4 Project co-funded by the European Commission within the Sixth Framework Programme ( ) Dissemination Level PU Public X PP RE CO Restricted to other programme participants (including the Commission Services) Restricted to a group specified by the consortium (including the Commission Services) Confidential, only for members of the consortium (including the Commission Services) MNP 2006 Parts of this publication may be reproduced, on condition of acknowledgement: ', the title of the publication and year of publication.'

3 page 3 of 119 Abstract Tool use in integrated assessments Integration and synthesis report for the SustainabilityA-Test project The way policy assessments have been carried out by making use of assessment tools such as cost benefit analysis, multi-criteria analysis and tools for organising participation does leave room for improvement. A precondition for making good use of tools is to know what tools there are and what they can deliver. This became the central issue in setting up the SustainabilityA-Test project, which is described in this report. The SustainabilityA-Test project produced a framework describing the tasks that are generally to be done in policy assessments and identifying tools that can support these tasks. A website, was also designed in the course of this project. This website not only provides easily accessible, peer reviewed information about assessment tools but can also be used to find suitable tools for specific evaluation tasks. Key words: assessment tools, sustainability assessment, integrated assessment, policy assessment, policy evaluation, impact assessment, EU Rapport in het kort Tool gebruik in integrale analyses integratie en synthese rapport van het SustainabilityA-Test project De wijze waarop beleidsbeoordelingen uitgevoerd worden met behulp van tools, zoals kosten baten analyse, multi-criteria analyse en tools om participatie te organiseren, kan verbeterd worden. Een voorwaarde voor het goed gebruik maken van tools is weten welke tools beschikbaar zijn en weten wat tools kunnen doen. Dit was het thema van het SustainabilityA-Test project, dat in dit rapport staat beschreven. Het SustainabilityA-Test project heeft een raamwerk opgeleverd dat de taken beschrijft die in het algemeen in een integrale beleidsbeoordeling uitgevoerd moeten worden en daarbij de tools laat zien die deze taken kunnen ondersteunen. Daarnaast is in het project een website ontwikkeld: Deze website biedt naast wetenschappelijk gereviewde informatie over de tools ook hulp bij het vinden van geschikte tools voor specifieke taken in een beleidsbeoordeling. Trefwoorden: evaluatie tools, duurzaamheidanalyse, integrale beoordeling, beleidsbeoordeling, beleidsevaluatie, effect rapportage, EU

4 page 4 of 119 Acknowledgements SustainabilityA-Test is a project carried out by more than 40 researchers from Europe and Canada. Without the help of all the partners involved in the project (see Annex 1), and the guidance of Daniel Deybe, the European Commission s responsible desk officer for this research project, the project would not have been possible. Co-authors of this report are listed below in alphabetical order: Hermann Lotze-Campen Potsdam Institut für Klimafolgenforschung (PIK), Germany Marc Dijk International Centre for Integrated assessment Sustainable development (ICIS), Netherlands Dirk Günther Institute for Environmental Systems Research (USF), Germany Marjan van Herwijnen Institute for Environmental Studies (IVM), Netherlands Nadja Kasperczyk Institute for Rural Development Research (IfLS), Germany René Kemp International Centre for Integrated assessment Sustainable development (ICIS), Netherlands Karlheinz Knickel Institute for Rural Development Research (IfLS), Germany Onno Kuik Institute for Environmental Studies (IVM), Netherlands Pim Martens International Centre for Integrated assessment Sustainable development (ICIS), Netherlands Alexa Matovelle Centre for Environmental Systems Research (CESR), Germany Måns Nilsson Stockholm Environment Institute (SEI), Sweden Mita Patel International Centre for Integrated assessment Sustainable development (ICIS), Netherlands Tiago de Sousa Pedrosa Joint Research Centre (JRC), Italy Ângela Guimarães Pereira Joint Research Centre (JRC), Italy Anneke von Raggamby Ecologic, Germany Philipp Schepelmann Wuppertal Institute, Germany Karlheinz Simon Centre for Environmental Systems Research (CESR), Germany John Turnpenny Tyndall Centre for Climate Change Research, United Kingdom Bart Wesselink Netherlands Environmental Assessment Agency (MNP), Netherlands Furthermore, the following persons have provided valuable input to the report: J. David Tàbara of the Institute of Environmental Science and Technology (IEST) in Spain, John Robinson of the Sustainable Development Research Initiative (SDRI) in Canada, David Stanners of the European Environment Agency (EEA) in Denmark and Jan Bakkes, Peter Janssen, Tom Kram and Arthur Petersen of the Netherlands Environmental Assessment Agency (MNP) in the Netherlands.

8 page 8 of 119 The reader and main points of interest This report is geared to those who want to know more about the role of tools in assessment and about how these tools roles have been derived. The report provides the scientific background for the website The following items are also included in this report: Executive summary: page 9 Results of interviews held with European Commission staff on their experiences with Impact Assessment: page 33 Tool overview: page 44 Summary of the role of each tool type in an integrated assessment: page 49 Overall conclusions and recommendations relevant for Impact Assessment: page 91 and 93.

10 page 10 of 119 Purpose of the SustainabilityA-Test project The purpose of the SustainabilityA-Test project was to strengthen integrated assessments for sustainable development by scientifically underpinning the use of assessment tools in integrated assessments for sustainable development. Assessment tools comprise all kinds of tools used to carry out assessments. Examples are found not only among model tools, and cost benefit analysis and participatory tools, but also among tools that frame integrated assessments for sustainable development, such as the European Commission s Impact Assessment procedure. Figure A, previous page, provides an overview of all the tools used in the project. Table A: The role of tools in assessments Phase I Problem analysis Phase II Finding options Phase III Analysis Phase IV Follow-up Participatory tools Problem framing (mobilising and integrating knowledge and values) Supporting scenario building Providing the context for and improve robustness of MCA, CBA and CEA Evaluating the assessment process Scenario tools Providing the future perspectives to problem framing Visioning futures, finding options and setting objectives Providing references for the application of analytical tools Multi-criteria analysis tools (MCA) Definition of criteria Comparing different alternatives Cost-benefit analysis (CBA) and cost-effectiveness analysis (CEA) tools Accounting tools, physical analysis tools and indicator sets Providing the analytical basis for problem-framing Supporting objective setting Full analytical characterisation of options to enable comparison Ex-post assessment Model tools Note: The table shows six tool groups in the left-hand column, followed by a column for each of the four generic phases of an assessment. A cell describes a task that is to be done in a particular phase. This task can be supported by the tool group of the same row as the cell. The shaded cells in the table represent task/tool combinations that are in the lead in a particular phase. The labels of the top row (problem analysis, finding options, etc) can be replaced by corresponding terminology found in different types of assessments, like Impact Assessment or Strategic Environmental Assessment. Tools and tool groups About 50 tools have been identified and evaluated within the project and grouped into seven tool groups. Although many more tools exist, these are not covered here. The tool groups

11 page 11 of 119 developed during the project do, however, allow extra tools to be easily added in the future if needed. The strengths and weaknesses are described for each tool covered in the project, along with the capacity of the tools to address the various issues relevant to sustainable development. Some of the operational characteristics of these tools, such as time and resource needs, are also outlined. Tool groups and their roles in integrated assessment A literature study into the use of tools in integrated assessment has resulted in an overall framework for the tools, focusing on the role of each of the seven tool groups in integrated assessments. This framework is summarised in Table A (previous page), which shows a simplified representation of four generic phases of integrated assessments for sustainable development and the tasks to be done. The tasks and the tool groups to support them are presented in the table. The tasks are described in the cells of the table; the left column shows the tool groups that can support the tasks. Choosing a tool within a tool group Selection criteria have been developed to aid in deciding which tools to choose from in a specific tool group (see Table B). Each tool group has its own set of selection criteria to aid in the search for the most suitable tool for a certain assessment task. Table B: Selection criteria for each tool group Tool group Participatory tools Scenario tools Multi-criteria analysis tools Cost-benefit and cost-effectiveness analysis tools (valuation methods) Accounting tools, physical analysis tools and indicator sets Model tools Criteria Number of participants to involve, whether or not ICT-based tools can be used, goal of participation, problem content, type of outcome desired and type of mediator needed/available Type of scenario desired, problem content, type of outcome desired (referring to process) and necessity to involve (scenario) experts Decision rule and type of data Approach (stated-preference or revealed preference) and aspect (of sustainable development) to be monetised Aspects (of sustainable development) to be covered Aspects (of sustainable development) to be covered Interviews with European Commission desk officers A number of interviews were held with desk officers from the European Commission during the project as a source of hands-on experience in putting the concept of integrated assessment within the European Commission into practice. The Commission s desk officers are potential users of the project s results. The interviews suggested that because desk officers are often not that familiar with the tools, information on the range of tools available for integrated assessment will be important. This information will be provided for through the

12 page 12 of 119 SustainabilityA-Test s webbook. Even if such information may not help desk officers to actually apply the tools the actual application is often delegated to (policy) researchers and analysts it is important that they know about them and about the pros and cons of each. Case study The SustainabilityA-Test case study has deepened the tool evaluation, and further allowed investigation of the role that tools play in integrated assessments. This was done by investigating how tools had been applied in a real policy situation the development of the biofuels directive and the energy crop premium regulation and examining how tools and tool combinations could have been applied. This case study facilitated a more direct comparison of the usefulness of tools. It has also led to several observations on the use of tools in integrated assessments for sustainable development. The case study observations formed the cornerstone for the overall conclusions drawn from the project. Integration and synthesis The results of the project were integrated and synthesised on the basis of three recurring themes listed below. In this way the overall framework, the case study and the interviews with desk officers could be integrated. The three recurring themes are: 1. The value of making tool combinations; 2. The scope of an assessment and coverage of impacts; 3. The communication about tools within the scientific community and between scientists and policy makers. On the value of making tool combinations: Conclusion 1: An integrated assessment for sustainable development is best supported by a combination of tools. Conclusion 2: Not too many tools should be used in an assessment, and tools do not necessarily have to be linked. Conclusion 3: The potential of combining tools is largely unexplored and could be significant. On the scope of the assessment and coverage of impacts: Conclusion 4: Defining the scope is crucial for the outcome of an assessment and could be supported by participatory tools. Conclusion 5: An integrated assessment for sustainable development combines quantitative and qualitative information. Tools are available for making this combination.

13 page 13 of 119 On the communication about tools within the scientific community and between scientists and policy makers: Conclusion 6: Tool use is hampered by jargon. Conclusion 7: Scientists need to better explain the added value of their own tools and learn about other tools. Additionally, there are two conclusions that are specifically relevant for Impact Assessments as carried out by the European Commission: Conclusion 8: Impact Assessments could benefit from the results of assessments done earlier in the policy making process. Conclusion 9: Impact Assessment can contribute to a comprehensive integrated assessment for sustainable development. Overall conclusion There seems to be room for significant improvements in the way integrated assessments are carried out by making use of efficient combinations of existing tools. A precondition for devising tool combinations is to know both what tools exist and what each can deliver. The webbook, developed in the course of this project, can be helpful in making integrated assessments for sustainable development for two reasons. Firstly, it outlines what an integrated assessment for sustainable development might look like, and secondly, it clarifies the role of tools in an integrated assessment, providing scientifically underpinned, easily accessible information about these tools to increase tool use and support use of tool combinations. And so, in this way, the webbook can forge a link between the scientific and policy-making communities. As the SustainabilityA-Test project did not cover all tools that exist, the results of this project should be considered a first step towards a better dissemination to tool information by means of a generic framework for explaining what tools can contribute to policy assessments.

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15 page 15 of Introduction Wouter de Ridder This report documents the project SustainabilityA-Test, and integrates and synthesises the work done throughout the entire project. The SustainabilityA-Test project is a so-called specific targeted research or innovation project (STREP) under the 6 th framework research programme of the European Commission (priority Global change and ecosystems). The project is about assessment tools used to assess a policy s contribution to sustainable development. The word tools refers to all kinds of methods, analytical approaches, procedures and frameworks that can be used for the assessment of policy. Examples of tools are cost benefit analysis tools, participatory tools, scenario tools, multi-criteria tools and models. The SustainabilityA-Test project is not an innovative research project in the sense that new tools have been developed. Instead, the project focussed on existing tools and created an inventory of tools, showing what can and cannot be done with them within an assessment. Together with this report, an internet-based handbook is published in which all information and other project deliverables can be found. This website is accessible via This report is written as a scientific background report, explaining the methodology used to build the functions offered by the website. This introductory chapter of the report explains the project s background and objectives, and methodology. It ends with an overview of the structure of the entire report. 1.1 Study background and objectives Many different tools are available for carrying out policy assessments for sustainable development. In the SustainabilityA-Test project these tools were examined on the basis literature review and a review of tool applications, and a case study. As the SustainabilityA-Test project is an EU research project, the EU level formed the background against which the project investigated the existence of tools and their usage in assessments, as well as the practice of policy assessment for sustainable development. In recent years, the EU in particular the European Commission, but recently also the Council and Parliament uses the so-called Impact Assessment methodology (CEC, 2003a; CEC, 2005) to accompany policy proposals with an assessment of the possible impacts of such proposals 1. This impact assessment system therefore forms an important basis of the project. 1 See for further information about the European Commission s Impact Assessment system [last accessed: December 2006].

16 page 16 of 119 But, the SustainabilityA-Test project is not only about the European Commission s Impact Assessment system, and also discusses other types of integrated assessment, such as Strategic Environmental Assessment and Environmental Impact Assessment, collectively referred to as integrated assessment. Sustainable development in the EU is made explicit by means of the EU Sustainable Development Strategy (EU SDS). Therefore, assessing for sustainable development is interpreted in this project as assessing a policy proposal in light of the priorities, targets and objectives set in the EU SDS. The overall goal of the project SustainabilityA-Test is to: 1. Support the definition and implementation of the EU Sustainable Development Strategy by describing, assessing and comparing tools that can be used to measure or assess sustainable development; and thus 2. Improve the scientific underpinning of sustainable development impact assessment. The main deliverable of the project is the internet-based handbook (webbook), which aims to support policy makers (and researchers) with finding the most suitable tools for carrying out an integrated assessment for sustainable development. 1.2 Study methodology The project has been executed in 30 months time, starting in March 2004 and ending in August A consortium of 18 partners from the EU, USA and Canada were involved in the project, spending in total approximately 170 man months of working time. The project members have different scientific backgrounds, but are for the most part working in the field of integrated (environmental) assessment. The research done in the SustainabilityA-Test project basically comprises five strands of work, which are briefly described in the next sections: 1. Building an inventory of assessment tools and carrying out an evaluation of them; 2. Developing a theoretical framework for the scientific underpinning of the selection of assessment tools; 3. Applying the assessment tools on a concrete policy case within a case study for investigating the practicalities related to the selection and application of assessment tools; 4. Interviewing staff of the European Commission in order to analyse the policy making context and in particular the usage of assessment tools; 5. Building of an internet based handbook (referred to as webbook) for all assessment tools.

17 page 17 of Tool inventory and evaluation More than 50 common assessment tools were identified at the start of the project. These tools have been described in a standard way, by means of the evaluation methodology as described in the project s inception report (De Ridder, 2005). The evaluation criteria included the suitability of assessment tools to support the various steps of a policy processes (e.g. problem recognition, analysis of policy proposals), their ability to cover the various key aspects of sustainable development (e.g. environmental, social and economic impacts, and crosscutting issues like intergeneration effects) and the costs, time needs et cetera to actually apply the tool. A database accessible via Internet was set up to store the collected information. The evaluations were done by the tool experts of the project team and peer-reviewed by experts from outside the project consortium Theoretical framework The evaluation results made it clear that it was necessary to deepen the tool evaluation to arrive at a better scientific underpinning of why (not) to use certain tools in assessments. During the evaluation, all tools were initially considered exchangeable. They were all evaluated with the same evaluation criteria, with the aim to build a tool database in which a user (e.g. Commission staff) could search for tools covering specific aspects of sustainable development, supporting a specific policy process and with certain maximum costs and time needs to apply the tools. However, it appeared that most tools can be deployed in many different ways and with many different scopes, thus addressing some or many sustainable development aspects, costing little or a lot and so forth. The main difference between all tools covered by the project lies in the role (i.e. the task or purpose) these tools have in an assessment. Thus, this scientific underpinning should concentrate on different tasks or steps in an assessment and in particular on the role that assessment tools can have to support these tasks. Such underpinning would do justice to the fact that e.g. model tools and participation tools are used for different purposes and thus have a different role but could in principle support the same policy making phase, cover the same economic, social and environmental impacts and crosscutting aspects and have more or less the same costs and time needs to be applied. The theoretical framework for assessment tools has been derived from available literature on integrated assessment and assessment tools and methods, and from the evaluation results of the assessment tools covered by the SustainabilityA-Test project. It has been extensively discussed within the project team. The result is a table with four generic phases of an assessment and six tool groups, with in each cell of the table a description of the specific role of the tool group in each phase of an assessment Case study The purpose of the SustainabilityA-Test project s case study is to better understand the theoretical and conceptual basis of the various tools, to analyse the role played by tools in decision making processes, and to compare the different tools in their ability to address key

18 page 18 of 119 aspects of sustainable development. In other words, the case study deepens the tool evaluation with experiences from practically applying them. The focus in this strand of work is the experts points of view on tool selection and opportunities for tool combinations. The users perspectives on tool usage and tool combinations is addressed by means of the interviews, which were part of the case study work package, but discussed separately in the next paragraph. The project team decided to use an existing policy case for the case study. The case chosen was the development of the biofuels directive and the energy crop premium regulation. These two policy proposals can in principle affected a wide variety of sustainable development aspects, and therefore provide the case study with a solid basis for investigating (potential) tool use. During the case study, the tool experts of the project consortium investigated which tools had been applied to the policy case and which tools could have been applied to strengthen the assessments that were made. In addition, three assessment plans were developed (but not applied) to illustrate which tools could be used, and how, to comprehensively assess the selected policy case Interviews The purpose of the interviews is to investigate the user s perspective on assessments in support of decision-making. As the SustainabilityA-Test project is an EU research project in support of EU policy making, the people interviewed were European Commission staff responsible for, or otherwise involved in, Impact Assessments that had been carried out in recent years. The interviews thereby complemented the project with the user perspective, next to the theory and practice of tool selection, and form the reality check of this project Building the webbook (i.e. internet based handbook) One of SustainabilityA-Test products to be delivered is a handbook on assessment tools. The project team discussed the necessity for such handbook to be updateable, flexible and easily accessible. With a paper handbook these criteria are hard to meet. An internet based handbook, referred to as webbook, was decided upon. The webbook has been designed, programmed and tested in the course of the project. The basis for the webbook is formed by the evaluation criteria and evaluation results stemming form the tool evaluation. These are transferred into an internet-accessible tool-database. The tool-database can be approached in different ways. These different approaches are derived from the tool evaluation, the theoretical framework, the case study and the interviews. The webbook brings together the different pieces of work done in the project and all reports and documents made.

19 page 19 of Outline of the report The report is structured according to Figure 1.1. The first two chapters of the report provide the introduction of the report (chapter 1) and the definitions of used concepts (chapter 2). The next four chapters present the three research strands that are discussed in this report. Chapter 3 presents the results of the interviews with European Commission staff. Chapter 4 and 5 describe the theoretical framework and the role of tools in integrated assessments. In chapter 6 the main outcomes of the case study are presented. The tool evaluation itself (outcome and used methodology) is not discussed in this report. The outcome of the evaluation is a data base filled with tool information, accessible via the webbook on The used methodology can be found in the project s inception report (De Ridder, 2005). Chapter 7 integrates and synthesises the work done in the SustainabilityA-Test project and draws nine overall conclusions. Integration and Synthesis report Chapter 1: Introduction Chapter 2: Definition of used concepts Introduction and definitions Chapter 3: Setting the scene impact assessment and Commission practice Policy context (interviews) Chapter 4: Theoretical framework for tools Chapter 5: Applying the theoretical framework to the tools Theory (tool-framework) Chapter 6: Case study Practice (case study) Chapter 7: Conclusions Integration and synthesis: conclusions Figure 1.1: Content and structure of this report.

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